Review of D.A.R.T.S. Operation : Final Report Disabled and Aged Regional Transit System of Hamilton-Wentworth

The Regional Municipality :
of Hamilton- Wentworth

HAMILTON PUBLIC LIBRARY

Disabled and Aged | M
Regional Transit System AR 13 1987
GOVERNMENT DOCUMENTS

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Disabled and Aged
Regional Transit System

Review of
D.A.R.T.S. Operation

PINAL
REPORT

JANUARY 1987

APPENDIX A - RESULTS OF DARTS CONSUMER SURVEY

TABLE OF CONTENTS

EXECUTIVE SUMMARY

INTRODUCTION

DESCRIPTION OF DARTS
DARTS Background

DARTS Services and Operations
DARTS Ridership

PSsEsOMENT OP ADEQUACY
Policy and Operating Guidelines

Potential for Coordination with Other Agencies

Comparison with Other Cities' Systems
Future DARTS Travel Demands
Assessment of DARTS Services
Operational Efficiency

DARTS Relationship to the Region

Summary of Current Issues

DEVELOPMENT OF DARTS SERVICE PLAN
Assessment of Service Strategies

Service Policies and Performance Guidelines
Five Year Plan Alternatives

Basis for Future DARTS Expansion

ORGANIZATIONAL REVIEW

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EXECUTIVE SUMMARY

DARTS (Disabled and Aged Regional Transit System) is a transportation
service provided to disabled residents of the Region who are unable to use
regular public transit. The review of the DARTS operation was initiated by
Regional Council to assess the adequacy of the existing operation and to

develop a plan for efficient and effective delivery of the services in future.

DARTS services have expanded rapidly during the past several years with
annual costs and system ridership roughly doubling between 1981 and 1985,
During 1985, DARTS provided 193,000 rides to approximately 3,500 registered
users. At the end of 1985, an additional 300 applicants were on a waiting list

for DARTS services.

In 1982 and again in 1985, DARTS conducted consumer surveys of agencies
whose clients used DARTS and of users of DARTS services. The results of
these consumer surveys are summarized in Appendix A. Fifteen (15) agencies
participated in the 1985 survey and 356 users responded to the survey.
Generally, the agencies and users participating rated the different aspects of
DARTS services favourably in both 1982 and 1985.

A detailed survey of DARTS users, conducted in March, 1986, indicated that
about 80% of the respondents have major mobility problems, about 10% have
little or no mobility problem and the remaining 10% are visually impaired,
retarded or frail-elderly persons with unclear mobility problems. The analyses
of ridership indicated that future DARTS ridership levels will be directly
related to eligibility policy. A relatively high portion of the Regional
population in wheelchairs and with major physical disabilities is currently well
served by DARTS and significant increases in ridership in future will likely
result from increased service to blind, retarded or frail-elderly mobility

handicapped persons by DARTS.

DARTS services were compared with the services provided in four other urban
areas (London, Peel Region, Winnipeg and Ottawa). The main findings of this

comparison are:

The level of service provided by DARTS in 1985 on a per capita basis
is roughly equivalent to that in Ottawa and significantly greater than

the other systems.

DARTS operating efficiency and financial performance compares very
favourably with other systems. This is largely related to DARTS
extensive use of taxis and the higher revenues from agency-sponsored

trips.

Through the assessment of the existing DARTS operation, the following major

issues identified were:

Eligibility policy

Agency service cost recovery

Specific service policies

Relationship of DARTS and the Region.

In response to these issues the study has recommended a number of service

policies and guidelines, as follows:

Eligibility

DARTS services shall be provided to residents of the Region who are unable to

use regular public transit with dignity due to a disability.

Registration

All applicants meeting the DARTS eligibility criteria and other requirements

of the application process shall be immediately registered to use the services
by DARTS.

Agency Services

DARTS will implement a program to recover the full net operating costs

associated with accommodating agency program trips.

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Regular Fares

DARTS fares shall be equivalent to the non-discounted single adult fare on the

regular transit system.

Trip Refusal Rates

DARTS shall attempt to accommodate 99% of all trip requests made more

than 24 hours in advance and 90% of all trip requests for service on the same

day.

Service Guidelines

DARTS should operate services within 15 minutes of scheduled pick-up

and drop-off times at least 95% of the time.

Travel times for passengers on DARTS vehicles should not exceed 75

minutes 95% of the time.

Service will be provided from 6:00 a.m. to 11:00 p.m. from Monday to

Friday and from 9:00 a.m. to 11:00 p.m. on weekends and holidays.

DARTS shall provide regular services within the boundaries of the

Regional Municipality of Hamilton-Wentworth.

Performance Targets

DARTS will schedule its services to achieve a vehicle productivity
target of 2.0 passengers per hour and a vehicle utilization target of 3.0

vehicle kilometres per trip by 1991.

DARTS will operate its services to achieve a cost efficiency target of
an average operating cost, expressed in 1986 dollars, of $10.50 per
passenger trip on DARTS vehicles and $4.25 per passenger trip on

taxis.

- ili -

Forecasts of DARTS ridership and associated costs have been prepared for the

five year period to 1991 as summarized below:

1986
DARTS 1991 Forecasts

Operation

(Estimated) Scenario A Scenario B
Annual Ridership 225,000 274,000 335,1.000
Annual Expenditures
(1986 Dollars) $ 2,128,000 S$ 2,491,000 S$ 2,536,000
Annual Revenues
(1986 Dollars) S$ 420,000 S 470,000 $ 392,000
MTC Subsidy
(1986 Dollars) $ 1,138,000 S-1,372,000 S. 1,485,000
Region Subsidy
(1986 Dollars) S 600 ,000 S 649,000 S 659,000
DARTS Vehicle
Requirements Pas) 33 30

Scenarios A and B illustrate the range of probable DARTS operting conditions
to 1991. Scenario A is based on ridership estimates derived from demographic
forecasts and a DARTS ridership survey with the current methods of operation
continued to 1991. Scenario B is based on greater increases in future ridership
on DARTS combined with further increases in the use of taxis to accommodate
trips by ambulatory persons. In both cases, the impact on the Regional subsidy
is similar and would indicate that future DARTS cost increases to the Region,
will be mainly cost inflation. It shold be noted that these forecasts are based
on continuation of current MTC funding and that any changes to this funding

could impact the Regional subsidy.

Specific changes to the current organizational structure which are

recommended are as follows:

DARTS should provide quarterly reports on its operations to Regional

Council through the Transportation Services Committee.

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The Region should consider incorporating the recommendations of this
Study in the current operating agreement between DARTS and the
Region.

The existing level of Regional representation on the DARTS Board of
Directors should not be changed but, in future, the Region's
representative should be a member of the Social Services Sub-
committee for the Disabled or the Transportation Services

Committee.

DARTS should not be integrated with the Region but specific changes to the
Region's and DARTS' responsibilities have been identified which could
effectively allow the Region a greater role in the delivery of DARTS services.

However, these changes are not felt to be warranted at the present time.

= Tie S

l. INTRODUCTION

In July, 1985, Regional Council initiated a review of DARTS (Disabled and
Aged Regional Transit System) in response to concerns related to the level of
service and overall cost-effectiveness of the system. The DARTS Board of
Directors welcomed and encouraged this study. The intent of the study is to
assist the Region and DARTS to continue to respond in an effective and
efficient manner to current and mid-term transportation needs of disabled
residents of the Region. Specifically, the study has responded to the following

issues:

The potential to improve the appropriate level of service to be

provided.
The determination of the appropriate level of service to be provided.

The organizational requirements for efficient and effective delivery of

DARTS services.

The study has been conducted by a working group consisting of staff of the
Regional Transportation, Finance and Social Service Departments as well as
the Ministry of Transportation and Communications (MTC) and DARTS. At
important milestones during the study, the Working Committee reported to
and received direction from a Steering Committee comprising the Regional
Administrator, Regional Commissioners of Transportation, Finance and Social

Services and members of the DARTS Board of Directors.

The study has been conducted in two phases. PhaselI has focussed on
developing an understanding of the existing DARTS system and the travel
needs of the disabled population of the Region. At the conclusion of this
Phase, the main issues to be addressed in Phase II were identified. Phase II of
the study has developed plans for the provision of DARTS services over the
next five years and has specifically addressed the need for DARTS service
policies, operational performance and level of service for the next five years

and changes to the current organizational structure.
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Section 2 of this report provides an overview description of DARTS services
and an assessment of the existing DARTS operation is provided in Section 3.
Development of a five year service plan for DARTS is outlined in Section 4
and the recommended organizational changes for successful implementation of
the plan are presented in Section 5. The detailed technical reports for each of

the study tasks are provided under separate cover.

Zs DESCRIPTION OF DARTS

DARTS is a special transportation service provided to physically disabled
residents of the Region who are unable to use regular public transit. A
summary of the major characteristics of DARTS is given in Table 2.1 and

further information is provided in the following sections.

Zol DARTS Background

DARTS is a private, non-profit corporation established in 1976 to "promote the
integration and development of transportation services within the Regional
Municipality of Hamilton-Wentworth for those disabled persons of any age but
who are handicapped in using the public transportation system". The affairs of
DARTS are managed by a Board of Directors, one of whom is appointed by

Regional Council.

DARTS is funded through MTC subsidies and a Regional grant, as well as
passenger revenues. An operating agreement has been established between the

Region and DARTS which covers the following:

DARTS operational responsibilities
Region responsibilities

General service characteristics
Passenger fares

DARTS Board of Directors

On a day-to-day basis DARTS is managed and operated independently of the
Region. Each year, DARTS submits a proposed budget and funding request to
the Region for approval. Also, DARTS prepares quarterly subsidy claims to
enable the Region to prepare subsidy applications to MTG,

Table 2.1

DARTS OVERVIEW FOR 1986

Total Expenditures:

Total Passenger Revenues:
MTC Subsidy:

Region Subsidy:

Type of Service Provided:

Area Served:

Hours of Service:

Number of DARTS Vehicles:

DARTS Vehicle Trips:
DARTS Taxi Trips:

Total 1986 Trips:

S$ 2,128,000
S 420,000
S 1,138,000
S$ 600,000

Pre-scheduled and demand
responsive door-to-door

service on vans and taxis.
All areas of Region.
6:00 AM to 11:00 PM Weekdays
9:00 AM to 11:00PM Weekends and Holidays
23 vans, 2 large buses
110,000 trips
115,000 trips

225,000 trips

Dee DARTS Services and Operations

DARTS provides services to disabled residents of the Region who are unable to
use regular public transit and who have been registered by DARTS to use the
services. At the end of 1985, there were about 3,500 registered users and an
additional 300 persons were on a waiting list for DARTS services. These
persons were being held on a waiting list as DARTS service capacity was not
adequate. In April, 1986 all persons on the waiting list were registered to use

the service.

The level of service provided by DARTS has the following generai

characteristics:

Service is pre-scheduled and/or demand responsive door-to-door

service by vans or taxis. Charter service is also provided for groups.
Area served includes all of the Region.

Service is provided from 6:00 AM to 11:00 PM weekdays and from
9:00 AM to 11:00 PM on weekends and holidays.

Fares for regular trips are equivalent to the regular adult HSR fare

while agency-sponsored trips are charged a higher, negotiated fare.

DARTS operations are based at a leased facility in the west end of Hamilton.

Some of the significant features of the operation are as follows:

DARTS uses a computer-based system for client registration, trip

reservation, scheduling functions, monthly reports and statistics.

About 50% of DARTS trips are accommodated on DARTS vehicles

while the remaining 50% are carried by taxis under contract to
DARTS.

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DARTS staff consisted of 15 office staff and 32 drivers in 1985. The

drivers are members of C.U.P.E.

DARTS costs have increased substantially over the past 5 years. A summary
of DARTS operating trends from 1981 to 1985 is provided in Table 2.2.

ape DARTS Ridership

The ridership on the DARTS services has grown about 115% from 1980 to 1985,
with 193,000 passenger trips provided in 1985. Approximately half of the
current ridership is carried on DARTS vehicles and the balance is carried on
taxis under contract to DARTS. In 1985, about 22% of DARTS trips were to
programs sponsored by other agencies. These agencies paid DARTS a special

negotiated fare for the sponsored trips.

In March, 1986 a survey of DARTS registrants was undertaken as part of this
study. This survey included DARTS registrants and persons on the DARTS
service waiting list. In total, over 3,700 persons were surveyed and the overall
response rate to the survey was 30% (1,163 responses). Main highlights of the

survey results are as follows:

80% (about 930 responses) of the respondents indicated major mobility
problems while about 10% (about 160 responses) indicated little or no
problems. The remaining 10% (about 100 responses) represent
blind/retarded and frail-elderly persons with unclear mobility

problems.

Half of the respondents are over 65 with 20% over 80 years of age.

About a quarter of the respondents had not travelled in the past
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Of the total trips reported by the respondents for a 30 day period,
about 65% were by DARTS vehicles and taxis, about 14% by driving
themself or riding with family or friends, about 8% were provided by
other agencies, about 7% were on regular taxis and about 5% were on
HSR buses.

80% of the trips recorded are to or from the lower Hamilton area, half

of which are completely in this area.

54% of DARTS trips are for work, school and medical purposes.

Respondents indicated a DARTS trip rate 3 times the average trip rate
for DART > users:

Desired trips indicated by respondents would represent a 16% increase
in demand over the actual DARTS trips recorded if all of the desired
trips were accommodated on DARTS. This estimate may be subject to

over reporting, however.

3. ASSESSMENT OF ADEQUACY

The assessment of DARTS adequacy is directed towards an evaluation of
DARTS capability to continue to respond effectively and efficiently to the

current and future transportation needs of mobility handicapped residents of
the Region. This assessment is based on the findings of various tasks

conducted during Phase I of the investigation.

3.1 Policy and Operating Guidelines

The development of policy and operating guidelines for DARTS is an important
step in the Study as it provides a basis for planning future changes and the
ongoing monitoring of DARTS services. In Phase I of the study, the Working
Committee discussed DARTS objectives and identified the range of policy and
operating guidelines which should be developed in Phase II]. These cover the

following areas:

Eligibility

Service guidelines

Fares and recovery of costs
Service efficiency targets

Reporting requirements

An important consideration was whether or not the DARTS guidelines should
be directly comparable to the HSR service guidelines in areas such as hours of
service, areas served, reliability and so forth. The major differences between
the two services are the door-to-door level of accessibility provided by

DARTS, as well as the clientele served.

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3.2 Potential for Coordination with Other Agencies

An extensive review of other agencies serving disabled people in the Region
was Carried out to assess the opportunities for combining the transportation
services operated by these agencies with DARTS. Over 40 other agencies

were contacted and at least 16 of these agencies provide some form of
transportation service to their clients. The majority of the transportation

services, however, are those provided by the School Boards in the Region.

It was concluded that there is not a great potential for extensive coordination
of transportation of services with DARTS which would result in significant

costs savings or service improvements, for the following reasons:

In many cases, the persons served by these agencies do not fully meet

the DARTS eligibility criteria.

These agencies receive funding from a variety of sources, including
other government jurisdictions such as Ministry of Community and

Social Services.
The main transportation services are provided by the School Boards
with travel activity during peak periods when DARTS is already
heavily utilized.
It is recognized, however, that there may be specific instances where trips
could be coordinated with DARTS and these would have to be considered on an
individual basis.

3.3 Comparison with Other Cities' Systems

A review of four other transit systems for disabled persons in similar sized

cities was conducted, as follows:

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London (Paratransit)
Peel Region (Transhelp)
Winnipeg (Handi-Transit)

Ottawa (Para Transpo)

In comparing these systems with DARTS, several areas were noted where the
DARTS operation differs from general trends within the industry, as outlined

below:

Only DARTS has created a waiting list of applicants (from time to
time) who are eligible for service but are not allowed to use the
system due to insufficient capacity. Peel and Winnipeg occasionally
have a number of registrants waiting for specific subscription trip

times.

DARTS is the only system which handles trips to other agency
programs at special fares paid by the agencies. About 20% of DARTS
trips are agency-sponsored trips. Also, DARTS has a significantly
more favourable revenue/cost ratio (0.22 compared to 0.04 to 0.13)

than the other systems investigated.

DARTS and the Ottawa systems carry two to three times as many
daily passengers as the other three operations even though both Peel

and Winnipeg have a larger service area population than DARTS.

Only DARTS makes extensive use of taxis for trips. Peel makes some
limited use of taxis while London and Ottawa operate some cars as

part of their vehicle fleet.

The overall system cost per capita (an indicator of the level of service
provided) for DARTS ($4.07 in 1985) and Ottawa (S4.60 in 1985) is
significantly greater than the other systems (between $1.53 and $2.87
in 1985). This indicates that the services are more extensive in

Hamilton-Wentworth and Ottawa-Carlton.

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The average cost per passenger trip on the DARTS system including
taxis ($8.94) is significantly lower than the other systems (between
$11.58 and $20.64) except London, which is $8.37 per trip.

The average cost per passenger trip on DARTS vans, excluding taxis, is
$11.45. The productivity on DARTS vans (1.73 passenger trips per
hour) is lower than the other systems (1.88 to 2.12 passenger trips per
hour). In 1986, the productivity on DARTS vans has improved to 1.98

passenger trips per hour.

3.4 Future DARTS Travel Demands

An analysis of the mobility disabled population in the Region and their
potential travel demands was conducted and a forecast prepared to 1991. This
analysis is based on data obtained through the DARTS Ridership Survey as well
as Statistics Canada. In preparing the estimates of mobility disabled persons,

four different categories of mobility disability were utilized, as follows:

Persons relying on wheelchair or walker for mobility.
Persons with other specific physical disability condition.

Persons who are blind (visually impaired) or mentally retarded with no

other disability condition.

Persons who are frail-elderly with no other disability condition.

Persons in the wheelchair/walker category would generally all be unable to use
regular transit services while most of the persons in the frail elderly category

may be able to use regular transit.

Data provided by the Regional Planning Department indicates that the total
Regional population will grow about 6% in 1991 as compared to 1982 (i.e.,
from 415,000 persons to 439,000 persons). However, due to the aging of the
population, it is estimated that the segment of the population with mobility
handicaps will grow about 12% over the same period (i.e., from 10,000 persons
in 1982 to 11,200 persons in 1991).

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Using the travel data from the Ridership Survey, the weekly trips on DARTS
were estimated for each disability category, as shown in Table 3.1. These

estimates incorporate the following assumptions:

Trip-making activity would increase about 15% from 1986 to 1991, on

a per person basis.
Market penetration would increase for all disability groups.

Persons with unclear disabilities currently registered on DARTS would

be allowed to continue using the service.

About 5% of all trip requests would be unable to be accommodated.

The resulting estimate of 1991 ridership is 5,270 trips per week or 274,000
trips annually. This is a 22% increase in ridership over 1986 (i.e., 225,000 trips

annually).

Table 3.1
FORECASTS OF DARTS RIDERSHIP TO 1991

Estimated 1991
Weekly Trips

Persons in Wheelchairs
and Walkers 2,400

Persons with Specific
Physical Disability 20

Person who are Blind,
Retarded or Frail-Elderly

Only 450
Persons with Unclear Disabilities 600
Subtotals , 52550

Estimated Trip Requests
Not Accommodated
(i.e., Refusals) 280

Total 1991 Weekly Ridership oT AY)

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5) Assessment of DARTS Services

The assessment of DARTS services focussed on DARTS service policies and

the level of service provided.

Several concerns related to DARTS service policies have been identified, as

summarized below:

The DARTS eligibility guideline (i.e. disabled persons who are unable
to use regular public transit) is somewhat broader than the MTC
eligibility guideline (i.e. disabled persons unable to board a regular
transit vehicle). The implication of this difference is that some
DARTS trips may not qualify for the MTC per passenger trip subsidy
($2.70 per trip) in the future, resulting in an increase in the Regional

subsidy requirement for DARTS.

The policy of maintaining eligible applicants for service on a waiting
list until major service expansions are implemented appears to
unnecessarily restrict access to the service. The approach in most
other systems is to register eligible applicants and to make the system
capacity available on a first come, first served basis. Even if the
system is fully utilized during peak periods, there are still
opportunities for new registrants to obtain some service during off-

peak periods when the system may not be fully booked.

The results of the travel survey indicated that a significant percentage
(i.e., over 10%) of the persons currently registered to use DARTS are
able to use regular public transit. This would indicate that some
existing system capacity is being used by persons who may not be

eligible under the stated eligibility guideline.

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Provision of services for trips to other agency programs, albeit at a
higher fare level, utilizes a significant portion of the DARTS service
capacity. This arrangement provides increased revenues to DARTS but
it also implies that DARTS accepts responsibility for providing these
trips. If other medical and social agencies increase the number of day
programs for persons living at home, increased travel demands will
occur. At the same time, the agencies may resist payment of higher
fares for trips to their programs. This situation requires a policy
regarding DARTS responsibility for providing trips to agency programs

and a basis for establishing fare levels.

The overall level of service provided by DARTS is comparable to that in the
other cities investigated. In terms of the level of expenditure, on a per capita
basis, DARTS is only exceeded by the Ottawa-Carleton system. Service is
available 7 days a week with slightly different hours of service than the H.S.R.
The regular DARTS fare is equivalent to the regular adult cash fare on the
H.S.R. services. The area served by DARTS is the full area of the Region
while the H.S.R. serves a smaller area defined as the Urban Transit Area. The
current level of service refusals is about 1% which is equal or better than
other similar sized systems. Over the last 5 years the service has expanded
considerably and would appear to be reaching maturity for those persons in

wheelchairs or walking aids and those with specific physical disabilities.

3.6 Operational Efficiency

In most respects, the operational efficiency of DARTS compares favourably

with other similar sized systems. The main areas noted are as follows:

DARTS has maintained a relatively low cost of service delivery
through extensive use of taxis under contract. The overall operating
cost per passenger trip on DARTS is lower than all the other
comparison systems except London. The lower cost per passenger in
London can be largely attributed to the significantly lower wage rates

of the drivers there.

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DARTS has developed and uses a microcomputer-based system for
handling user registration files, trip reservations, daily trip schedules
and generating operational reports. This system provided efficiencies
in the current operation and also provides flexibility to accommodate

increased demands in future.

Maintenance and servicing of DARTS vehicles is performed through a
maintenance contract arrangement. This arrangement provides
DARTS with the opportunity to obtain these services at competitive

prices.

In reviewing that segment of the DARTS operation provided by the DARTS
vehicles only (i.e. non-taxi services) it would appear that there may be some
scope for improvements in productivity. In 1985, the number of passenger
trips provided per vehicle hour (including charter services) was 1.73 which was
a significant decrease from previous years (2.1 in 1984 and 2.3 in 1983). This
is lower than the other comparison systems which range from 1.88 passenger
trips per vehicle hour in London to 2.12 passenger trips per vehicle hour in
Ottawa and Winnipeg. This lower productivity for the DARTS vehicle
operations is related to the specific scheduling of trips and may be the result
of shorter trips being scheduled on the taxi services and longer trips being
scheduled on the DARTS vehicles. This aspect of the DARTS operation was
considered by DARTS staff and has resulted in an improved productivity of

1.98 passenger trips per vehicle hour in 1986.

PTs DARTS Relationship to the Region

In comparing DARTS to other similar operations, it was noted that each
system was organized differently. However, in each of the other systems, the
municipality played a role in management of the system through a municipal
department or transit commission. At the same time, in 2 of the 4 systems
(London and Ottawa) the on-street operation is the responsibility of a private
contractor. DARTS is unique in that it is the only system which is both
managed and operated at "arms length" from the municipality. An advantage

of a private agency or contractor operating the service is that various

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efficiencies are achieved which are more difficult for a municipal government
department to achieve. Also, with an agency such as DARTS, considerable
volunteer time is received by persons on the Board of Directors and others
which greatly assist the system. There is also greater potential for charitable
donations. A disadvantage in the system being at "arm's length" from the
municipality is that the basis for setting and administering policies may not
coincide with Regional objectives and the accountability for public funds spent

on the service may be less direct.

In the current relationship between DARTS and the Region, the process for

establishing major policies is not clear. This relates to such areas as:

: Determining guidelines for eligibility for DARTS services and

administering these guidelines.

Holding eligible applicants for DARTS services on a waiting list until
sufficient capacity is deemed to be available to accommodate these

persons.

Provision of services for trips to programs provided by other agencies

and the fare levels for these services.

The present organizational structure has enabled DARTS to operate an
efficient and effective service. If the Region chose to take a more active role
in formulation of service policies it would require a change in the

organizational structure and current agreement.

3.8 Summary of Current Issues

At the conclusion of Phase I of the study, a number of issues related to the

existing DARTS system were identified. These are summarized below:

ety ae

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Eligibility Policy
The current DARTS eligibility policy is broader than the MTC funding

policy guidelines. Also, future ridership needs for DARTS services are

directly dependent on eligibility policy.

DARTS Waiting List

The current practice of holding eligible applicants on a waiting list is

felt to unnecessarily restrict access to the service.

Service to Agency Programs

Provision of service for agency trips at negotiated rates provides
increased revenue to DARTS, thereby reducing Regiona! subsidy
requirements. However, there is not currently a clear policy for

negotiation of rates and services with these agencies.

Fare Policy

Under the current MTC funding policy, passenger revenues for DARTS
service directly affect Regional subsidy requirements. The current
policy of fares being equivalent to regular adult HSR fares results in

about 11% of service costs being recovered through fares.

Future Level of Service

DARTS services have increased significantly during the past five
years. The study should address the need for future service levels

including the area to be served and hours of service.

Operational Performance

Current DARTS operational performance is high in most areas
although there is some scope for improved DARTS vehicle operating
efficiencies. For ongoing planning and monitoring of services,

operational performance targets will be helpful.

aye

= =

Organizational Structure

The organizational structure should be reviewed to ensure it
facilitates the efficient delivery of services in accordance with agreed
on policies. The respective roles of DARTS and the Region should be

well clarified.

-19-

4. DEVELOPMENT OF DARTS SERVICE PLAN

Development of a plan for DARTS services over the next five years

encompassed the following:

An assessment of alternative DARTS service strategies.

Formulation of recommended DARTS service policies and performance

guidelines.

Development of five year programs for DARTS including ridership,

financial impacts and operating requirements.

Alternative five year DARTS programs are outlined, representing different

approaches to future development of the services.

4.1 Assessment of Service Strategies

A range of general service strategies was investigated, reflecting the

following:

Different levels of ridership resulting from different eligibility

guidelines in 1991.
Different fare strategies for regular users and agency services.

Different areas and hours of service for DARTS.

The evaluation of this range of strategies for 1991 resulted in the following

findings:

The overall costs of DARTS services to 1991 are directly related to
the eligibility guidelines that are adopted and the resulting levels of
ridership.

Reduction of the DARTS service area to the urban transit service area
would reduce ridership by about 5% and overall costs by about 6% to

8%. However, the outlying areas of the Region which would lose

200.

DARTS services have about 10% of the Regional population.
Therefore, it is not felt that a reduction of the DARTS service area is

warranted.

Minor changes to the current DARTS service hours or to the evening
and Sunday services do not significantly impact DARTS costs or
subsidies. Therefore, it is not felt that specific changes to DARTS

service hours should be further considered.

The Regional share of the DARTS deficit is strongly impacted by fare
and revenue policies. Under the MTC funding policy, increased
DARTS revenues directly offset the Regional grant to DARTS. The
charges for agency trips currently are roughly equivalent to the full
net operating costs (i.e., operating costs less MTC per trip subsidy) of
the service provided so there is no scope for increased revenue from
the agencies. However, revenue policies which increased fares for
regular passenger trips would provide a mechanism to limit the rate of

increase of Regional subsidies to DARTS.

Through this investigation, two strategies were identified for further analyses,

as follows:

A Trend Strategy which would accommodate DARTS ridership to 1991
for those persons unable to use regular public transit with all existing
users being "grandfathered" (i.e., permitted to continue using DARTS

regardless of their physical condition).

A Restraint Strategy which would limit the annual increase in the
Regional subsidy to DARTS to 34% by gradual increases in the fares

for regular trips on the system.

4.2 Service Policies and Performance Guidelines
To guide the ongoing development of DARTS services and as a basis to monitor

performance, the following service policies and performance guidelines are

recommended by the Working Committee.

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4.2.1

Service Policies

Recommended service policies with supporting comments are outlined below.

Eligibility

DARTS services shall be provided to residents of the Region who are unable to

use regular public transit with dignity due to a disability.

This policy is consistent with the current intent of the DARTS service.
It is, however, broader than the existing MTC policy of funding
services to persons unable to board regular transit vehicles. If MTC
were to strictly enforce their current policy in future, this policy
could result in a loss of MTC funds in the order of $100,000 to
$150,000. In implementing this policy, it is intended that all existing
DARTS users would be permitted to continue using the services. Also,
it is intended that DARTS would provide reciprocal service to users

registered with a similar service in other cities.

Registration

All applicants meeting the DARTS eligibility criteria and other requirements

of the application process shall be immediately registered to use the services
by DARTS.

This policy is intended to eliminate any waiting lists and to make the
services available on an equitable "first come, first served" basis. In
the case of new users, they would have opportunities to use the
services in off-peak periods if the peak period services were fully
booked. j

Agency Services

DARTS will implement a program to recover full net operating costs

associated with accommodating agency program trips.

- 22 -

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This policy will provide a basis for DARTS to negotiate charges for
agencies requesting services for their programs. Under current MTC
funding policy, DARTS cannot charge more than operating costs less
the MTC per trip subsidy. This policy would be phased in by DARTS

over the next 2-3 years.

Regular Fares

DARTS fares shall be equivalent to the non-discounted single adult fare on the

regular transit system.

This policy is a continuation of current practice which equates DARTS
fares to H.S.R. fares. In future, if DARTS costs increase more rapidly
than other costs, it may be necessary to establish a cost-recovery fare
policy (e.g., fares set at 15% of costs) to control the impact on the
Region subsidies to DARTS.

Trip Refusal Rates

DARTS shall attempt to accommodate 99% of all trip requests made more

than 24 hours in advance and to accommodate 90% of all trip requests for

service on the same day.

This policy provides a basis to determine if the capacity of DARTS
services is adequate in relation to service needs. Also, this policy
recognizes the the greater priority associated with accommodating
trips requested in advance. Presently, DARTS accommodates 99% of
all trip requests while other similar systems accommodate 97% to 99%

of trip requests.

Service Guidelines

DARTS should operate services within 15 minutes of scheduled pick up and

drop-off times at least 95% of the time.

eae

Travel times for passengers on DARTS vehicles should not exceed 75 minutes
927601 the time:

Service will be provided from 6:00 a.m. to 11:00 p.m. from Monday to Friday

and from 9:00 a.m. to 11:00 p.m. on weekends and holidays.

DARTS shall provide regular services within the boundaries of the Regional

Municipality of Hamilton-Wentworth.

These service guidelines are consistent with existing services provided
by DARTS and the assessment of alternative service strategies
concluded that changes are not warranted. DARTS may occasionally
provide charter service outside the Region and this should be on a

cost-recovery basis.

Performance Targets

DARTS will schedule its services to achieve a vehicle productivity target of
2.0 passengers per hour and a vehicle utilization target of 8.0 vehicle

kilometres per trip by 1991.

DARTS will operate its services to achieve a cost efficiency target of an
average operating cost, expressed in 1986 dollars, of $10.50 per passenger trip

on DARTS vehicles and $4.25 per passenger trip on taxis.

These performance targets represent minor improvements over
current performance levels on DARTS but are felt to be reasonable
targets. Performance targets provide a basis for monitoring services
and identifying potential areas for improvement. It should be noted
that operating costs do not include DARTS overhead and depreciation

costs.

4.3 Five Year Plan Alternatives

Three alternative plans for development of DARTS services to 1991 have been

investigated, as follows:

Trends Plan which focuses on accommodating forecast travel demands

for DARTS services.
Eoin

Restraint Plan which would limit the annual increases in Region

subsidies for DARTS to 32%.
DARTS Plan, prepared separately by DARTS, which is based on

generating substantially increased ridership to 1991 through increased

penetration of the mobility disabled market.

A summary comparison of these alternatives for 1991 is provided in Table 4.1

and a description of each is provided below.

Trends Plan

This plan would accommodate a 22% increase in DARTS ridership to
1991 which is the forecast ridership for those persons unable to use
regular public transit with all existing DARTS users being
grandfathered.

In 1991, about 51% of DARTS rides would be accommodated on taxis.

In 1986, about 51% of DARTS rides were carried on taxis.

The service policies incorporated in this plan are those presented in

Section 4.2.

The current MTC funding policy would be continued to 1991 with all
trips receiving the per trip subsidy. If MTC restricted this subsidy to
only those trips unable to board regular transit (about 85%) about
$110,000 of the MTC subsidy could be shifted to the Region.

Total system expenditures would increase about 17% and the Region

subsidy would increase about 8% in constant 1986 dollars.

Restraint Plan

Ridership accommodated is same as the Trends Plan.

Regular DARTS fares would be incréased to about 15% of operating

costs (from about 10% in 1986) to increase system revenues.
MTC funding policy assumptions are same as Trends Plans.

Total system expenditures would increase about 17% and Region

subsidy would decrease about 9% in constant 1986 dollars.

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subsidy increases would be about 3%% annually.

DARTS Plan

4.4

This plan was prepared by DARTS and would represent further
expansion of the mobility disabled market served by DARTS.

This plan would accommodate a 47% increase in DARTS ridership to

1991 as compared to 1986.

In 1991, about 57% of DARTS rides would be accommodated on taxis
as compared to 51% in 1986. This is assumed to reflect an increasing

use of the service by ambulatory persons.

Revenues projected by DARTS increase ridership more rapidly than

revenues, representing reduced revenue per trip in 1986 dollars.

Financial projections are reduced to 1986 dollars using an assumed
inflation rate of 5% annually. Total system expenditures would
increase about 19% and Region subsidy would increase about 10% in

estimated 1986 dollars.

As a result of the increased use of taxis in this plan, costs increase

less rapidly than ridership.

MTC funding assumptions are same as Trends Plan. If MTC restricted
the per trip subsidy as noted early, there would likely be a larger

amount of the subsidy shifted to the Region than with the Trends Plan.

Basis for Future DARTS Expansion

One of the main issues related to future DARTS operations is the level of

subsidy required to provide the service. As-illustrated by the range of five

year plan alternatives, the level of subsidy required is directly dependant on

the following:

Level of ridership accommodated

Method of operations

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. Revenue policies

The Trends Plan and the DARTS Plan provide two scenarios of different
ridership levels and operating methods to 199!. These two scenarios are
described in more detail in this section to provide a basis for future DARTS

expansion.

Scenario A is outlined in Table 4.2. This scenario has a ridership increase of
22% to 1991, as compared to 1986, based on demographic forecasts and the
results of the DARTS ridership survey. In this scenario the mix of wheelchair
and ambulatory person trips is estimated to remain relatively constant. Asa
result the method of operation is based on continuing the current level of taxi
utilization, Scenario B is outlined in Table 4.3. This scenario represents a
ridership increase of 47%, as compared to 1986. The number of trips able to
utilize taxis in this scenario is forecast to increase sigificantly, enabling
greater use of taxis in the DARTS operation. As a result, operating costs
would not increase as rapidly as ridership and the increase in the required

DARTS subsidy over Scenario A is relatively low (i.e. about 6%).

In both of these scenarios it is assumed that the existing MTC funding policy
will continue to 1991. If MTC were to change this policy by limiting the
annual amount of the subsidy or by limiting the funds to persons meeting the
MTC eligibility criteria, there could be further increases in the Regional
subsidy required. Also, if the increased utilization of taxis assumed in
Scenario B can not be achieved, the overall costs and subsidy requirements
could increase. Scenarios A and B represent the likely range of ridership and
fiscal resources required for DARTS over the next five years. These are

intended as forecasts rather than fixed plans.

ole

Ridership
Vans and charters

Taxi trips

Annual Ridership

Annual Expenditures
(1986 Dollars)

Annual Revenues
(1986 Dollars)

Total Subsidy Required

(1986 Dollars)

MTC Subsidy
(1986 Dollars)

Region Subsidy

(1986 Dollars)

Fleet Requirements
In service vehicles

Spare vehicles

FIVE YEAR PROJECTION: SCENARIO A

Table 4.2

_— ——— —————— —————

115,000

120,000

235,000

$2,198,000

S$ 430,000

$1,768,000

$1,185,000

Ss) 583,000

22

120,000

t25,.000

245,000

$2,272,000

§ 440,000

$1,832,000

Siy2372,000

§ 600,000

26

IONS

125,000

130,000

255,000

$252 30.000

S$ 450,000

$1,880,000

$1 42785000

§ 602,000

Fail

129,000

135,000

264,000

$2,414,000

$ 460,000

$1,954,000

$1,325,000

S$ 629,000

28

1971

——

134,000

140,000

274,000

$2,491,000

§ 470,000

$2,021,000

Si 3/29000

5 649,000

29

Ridership
Vans and charters

Taxi trips

Annual Ridership

Annual Expenditures
(1986 Dollars)

Annual Revenues
(1986 Dollars)

Total Subsidy Required

(1986 Dollars)

MTC Subsidy
(1986 Dollars)

Region Subsidy

(1986 Dollars)

Fleet Requirements
In service vehicles

Spare vehicles

FIVE YEAR PROJECTION: SCENARIO B

Table 4.3

115,000

123,000

238,000

$2,239,000

S 410,000

$1,829,000

$1,197,000

S 632,000

22

1297000

135,000

264,000

522.07 000

S$ 413,000

$1,904,000

i279, 000

$ 625,000

Zi

Ache

135,000

150,000

285,000

$2,383,000

§ 403,000

$1,980,000

$1,349,000

S 631,000

28

1395000

168,000

307,000

$2,450,000

$ 397,000

$2,054,000

$1,412,000

S$ 642,000

30

143,000

188,000

$31,000

$2, 536,000

56392000

$2,144,000

$1,485,000

$ 659,000

30

de ORGANIZATIONAL REVIEW
The existing organizational structure related to DARTS services was reviewed
to determine appropriate changes for effective delivery of the planned

services. The findings are discussed below.

Integration of DARTS with Region

Integration of DARTS with the Region organization is not recommended at
present. While such a change would provide Regional Council with increased
control over DARTS operations, it is unlikely to improve the operational
efficiency of the existing system and it would involve a major change to an

established organization.

Region Assumes System Management Function

Although many municipalities do maintain system management responsibility
for special transit services while having operations provided under a contract,
it is not recommended that the Region consider assuming DARTS system
management functions at the present time. Such a change would likely
increase overall administrative costs and would still involve significant

changes to an established organization.

Region Assumes User Registration Responsibility

The function of user registration involves the specific interpretation and
administration of the DARTS eligibility policy. The transfer of this
responsibility to a Regional Department would provide an effective means for
the Region to have greater control over the demands for DARTS services
without significantly disrupting the existing organizational structure.
However, for the Regional Department involved, additional staff would be
required and they would have to develop appropriate experience to carry out
the responsibility. In the view of the Working Committee, this change is not

currently warranted.

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Regional Representation on DARTS Board
of Directors

At present, one member of the DARTS Board of Directors is appointed by
Regional Council. The existing level of representation does not require a
change. It is recommended that in future, the Region's representative should
be either a member of the Social Services Sub-committee for the Disabled or

the Transportation Services Committee.
Reporting to Region

It is recommended that DARTS provide quarterly reports on its operations to
Regional Council through the Transportation Services Committee. These

reports should include:

Financial performance in relation to approved budgets.

Statistics, Of “registration, ridership, ‘trip refusal rates; vehicle

productivity, vehicle utilization and cost efficiency.

The necessary data is currently available for these reports and no additional

expenses are anticipated.

DARTS - Region Operating Agreement

The Region should consider incorporating the recommendations of this study in
the current agreement between DARTS and the Region. Revisions to the
agreement should include DARTS service policies and guidelines, fare and
revenue policies, responsibilities and procedures for user registration and

reporting requirements.

Internal DARTS Organization

No changes are recommended to the internal organization of DARTS. The

overall level of administrative costs is reasonable in comparison to other

cous

Th ots sink’ oe) aevennl ant

re tL : j a
fo: | :
Phane

systems and the current organization can accommodate future service

requirements without major changes.

933 °—

Appendix A

RESULTS OF DARTS CONSUMER SURVEY

Table A.1

EVALUATION BY AGENCIES

Raw Numbers and Percentage of Sample: - (1982 in parenthesis)

Satis-
Good Factory Poor
% of % of % of
Service No. Total No. Total No. Total
Punctuality 5) 20.0 8 D362 4 26rd
(29.4) (47.1) (23.5)
Client time in vehicle 7 50.0 Zu 50.0 0 O*
(3 7a 5s) (37 <d) (250)
Vehicle Appearance tet 78.6 2 la53 1 Tal
(64.7) (29,4) (5.9)
Loading/Unloading [2 80.0 e| 20.0 0 O*
(Cee: (33.9) ee),
Ramp/lift safety 11 78.6 3 21.4 0 O*
(37.5) (43.8) (13.7)
Safety equipment 11 78.6 3 21.4 0 O*
(28.6) (50.0) (21.4)
DARTS' Drivers
Attitude Np 78.6 2 14.3 | ira.
(5259) (29.4) C1756)
Helpfulness ») 64.3 4 28.6 1 re Nis
(58.8) (29.4) (11.8)
Knowledge of city 8 Gites 4 30.8 l Lea
(66.7) (3333) (0)
Operation of vehicles je oA 4 l Se, 0 OF
(71.4) (21.4) (7,2)
Loading/unloading i S57 ie 14.3 0 0*
procedures (43.8) 7) (1337)
Taxi/Livery Drivers
Attitude D sy, 6 50.0 1 8.3
Helpfulness 6 50.0 5 Ole? 1 8.3
Knowledge of city 7, 63.6 3 OH LOE: l Dak
Safety 4 44.4 4 44.4 1 11.2
Office Staff ;
Attitude 8 ee re) 6 40.0 1 yy hea
(42.9) (42.9) C1652)
8 52.2 6 40.0 1 C7
Helpfulness (42.9) (50.0) eee
Knowledge of agency OA aes CD meee Re.
requirements (38.5) ‘

The evaluations overall tend to range from good to satisfactory, with one | category
(punctuality) receiving a poor rating by more than 20% of the agencies.

* Indicates 11 out of 14 categories have shown improvement since 1982.

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